The South in the U.S.A.
by Howard K. Menhinick, Regents’
Professor
of City Planning, Georgia Institute of Technology, Atlanta, Georgia
The South in the U.S.A. with
which we are
concerned in this paper consists of the states of Maryland, Virginia,
North
and South Carolina, Florida, Georgia, Alabama, Mississippi, Louisiana,
Tennessee and Kentucky. This is a region of great diversity in climate,
soils, rainfall, resources, and people.
The South at the Turn of the
Century
At the turn of the century this
region
was predominantly agricultural. Cotton, corn, tobacco, lumber, and
naval
stores were its principal crops with cotton predominating. In the
mountainous
portions of the region, isolated, independent farmers eked out a bare
living
on small tracts of land. In the more southern and level piedmont and
coastal
plain portions of the region, there still remained many of the large
pre-Civil
War plantations devoted largely to cotton and operated by tenants and
sharecroppers
who for the most part were Negroes. The plantation owners lived a life
of ease and luxury and it is around them and their way of life that
much
of the romance of Southern graciousness and hospitality has been built.
By contrast, the life of the sharecropper was a meager one. On the
harvesting
of each cotton crop, the sharecropper, if fortunate, was able to pay
the
debts he had accumulated during the year and be ready to start into
debt
again.
Catastrophe struck the South with
the
appearance of the destructive cotton pest - the boll weevil. This
insect
forced the South to abandon its one-crop cotton economy and seek
economic
diversification. Textile mills were encouraged to move from New England
to the South to take advantage of low-wage Southern labor and to escape
labor unions. They built mill villages for the housing of their
employees
and developed an almost feudal system of living. Practically all of the
southern industries of this period were financed almost entirely by
northern
capital. Their earnings were siphoned out of the South and sent to
their
northern stockholders. For the most part, these industries did only
primary
processing. Raw materials - cotton, lumber, ceramic clay, and so on -
and
semi-processed materials were sent to the North for the final
processing
stages (in which the greatest value is added). Many of the finished
goods
were reshipped to the South for consumption. This system was
strengthened
by a rail-rate structure which provided low freight rates for raw
materials
and semi-processed materials going North with high rates for finished
products
going North and low rates for finished products coming South. The
South,
at this period, was essentially a colony of the North.
The low industrial wages of the
South,
the predominance of agriculture, and the high proportion of poorly
educated,
low-productive Negroes kept the average per capita income in the South
the lowest in the nation. The widespread incidence of the debilitating
diseases of malaria and hookworm further lowered the workers’
productivity.
One aspect of this situation in
the South
in this era was well characterized in the now famous words of an
Atlanta
newspaper editor, Henry Grady.
“I attended a funeral once in
Pickens
County in my state Georgia. A funeral is not usually a cheerful object
to me unless I can select the subject. I think I could perhaps without
going a hundred miles from here find the material for one or two
cheerful
funerals. Still this funeral was peculiarly sad. It was a poor
“one-gallus”
fellow whose britches struck him under the arm pits and hit him at the
other end about the knee They buried him in the midst of a marble
quarry;
they cut through solid marble to make his grave and yet a little tomb
stone
they put above him was from Vermont. They buried him in the heart of a
pine forest and yet the pine coffin was imported from Cincinnati. They
buried him within touch of a iron mine and yet the nails within his
coffin
and the iron in the shovel with which they dug his grave were imported
from Pittsburgh. They buried him by the side of the best sheep grazing
country on the earth and yet the wool in the coffin bands and the
coffin
bands themselves were brought from the North. The South did not furnish
a thing on earth for that funeral but the corpse and the hole in the
ground.
There they put him away and the clods rattled down on his coffin and
they
buried him in a New York coat and a Boston pair of shoes and a pair of
britches from Chicago and a shirt from Cincinnati leaving him nothing
to
carry into the next world with him to remind him of the country in
which
he lived and for which he fought for four years but the chilled blood
in
his veins and the marrow in his bones.” (1)
These conditions prevailed in the
South
into the depression of the 1930’s. At that time the South was aptly
characterized
as the nation’s “Economic Problem No. l.”
Within 20 years from 1930 to 1950,
the
South has changed from America’s Economic Problem No. 1 to America’s
new
frontier and land of opportunity - a region of steadily increasing
prosperity.
The New South as Exemplified
by the
Tennessee Valley
I should like to tell you of these
changes
and how some of them came about, in terms of the portion of the South
with
which I am most familiar, the Tennessee Valley. I hope that the
experiences
in the Tennessee Valley may contain some ideas that will have
application
to the problems of Southem Italy and that we, in turn, may take back to
the United States new ideas growing out of your experiences.
The Tennessee Valley in 1933
The Tennessee Valley, the
watershed of
the Tennessee River and its tributaries, lies as a great half moon in
parts
of the seven states of Virginia, North Carolina, Georgia, Alabama,
Mississippi,
Tennessee, and Kentucky. It contains 40,000 square miles of varied
topography
- mountainous in the northeast, a high and relatively flat plateau in
the
middle northern section, and low, flat lands in the southern portion.
The
region is bisected from Virginia to northern Alabama by a great valley
in which most of the cities, the industries, and the people of the
region
live. The Tennessee Valley has an average rainfall of about 40 inches
reasonably
well distributed throughout the year. It has an equable year-round
climate.
A large portion of the Valley consists of cut-over forests.
In 1933, much of the soil of the
Tennessee
Valley was seriously eroded and its forests were largely neglected or
destroyed.
The living standards of its 3,000,000 people and their average per
capita
income were the lowest in the nation - about $ 150 or approximately 40
per cent of the national average at that time. Outmigration from the
region
in search of economic opportunity was high, malaria was prevalent,
diets
were inadequate, and the people were discouraged. The Tennessee River
was
more of a liability than an asset. Spring Hoods washed away topsoil and
brought destruction to the Valley and its people. In summer and early
fall
the river receded to a mere trickle with shallow pools in which malaria
mosquitoes flourished. The river of this period was once characterized
as “too thick to swim in, too thin to plow.”
These conditions existed despite
the varied
and abundant resources of the Valley, including people of fine basic
character
and intelligence, a favorable growing season, potentially productive
soils
and forests, coal and other minerals, scenic resources, and an
abundance
of water. But the key to the release and productive utilization of
these
resources was lacking.
Establishment of the
Tennessee Valley
Authority
The Federal government, through
the Tennessee
Valley Authority, provided the missing key. This agency was created in
1933 to stimulate the development of all of the resources of the
Tennessee
Valley in an integrated manner. Through the building of a unified
system
of great dams, the river was to be harnessed and put to work for
navigation
flood control, and hydroelectric power development. New types of
agricultural
fertilizers were to be developed and demonstrated. The work of
controlling
the river was recognized as a primary responsibility of TVA.
Navigation
Twenty dams and reservoirs have
been built
by TVA to make the Tennessee River system one of the most completely
controlled
streams in the world. The main river, from its point of origin just
above
Knoxville, to its junction with the Ohio River near Paducah, Kentucky,
consists of a 630 mile long connected chain of lakes over which
commercial
navigation moves in rapidly increasing amounts. The Tennessee River is
linked with a 9000 mile inland waterway system serving 20 of the 48
states.
In 1954 the Tennessee River carried more than a billion ton-miles of
traffic
with savings in freight costs of more than $ 12 million. Cargoes
included
grain from the Midwest, automobiles from the Great Lakes states,
petroleum
products from the Southwest and Midwest, steel from Pittsburgh and
Chicago,
fertilizer to the Midwest, coal from Ohio River ports, and salt and
sulfur
from the Gulf coast.
Flood Control
The controlled river system has
averted
more than $ 58 million of flood damage that would otherwise have
occurred
during the last two decades. In January, 1954, the control system
lowered
by 12 feet what would otherwise have been the crest of a flood at
Chattanooga,
Tennessee, averting on that one occasion $ 7,600,000 in damage at that
city alone.
Hydroelectric Power
In July 1954, TVA had installed in
its
dams 2,300,000 kilowatts of hydroelectric capacity and 757,500
kilowatts
of steam generating capacity. About 30 billion kilowatt-hours of
electric
energy were sold by TVA during the 1954 fiscal year. However, there are
other figures on the use of electric energy that have more significance
in terms of regional development.
TVA electric power is distributed
retail
throughout the Valley by Municipal Power Boards and Rural Electric
Cooperatives.
In 1954, the average cost per
kilowatt
hour of electricity to consumers was 1.26 cents in the TVA region,
compared
with 2.72 cents in the Nation. The number of residential consumers was
1,117,000 which was five times the number in the region in 1933. At the
end of 1954, 436,000 farms had electric service. Only 15,000 had such
service
in 1933.
The development of the river
system for
navigation, flood control, and hydroelectric power was planned and
carried
out as a direct operation by TVA.
Fertilizer Production and
Demonstration
At Muscle Shoals, Alabama, there
were
World War I munitions plants which were turned over by the federal
government
to TVA to keep in stand-by condition and to use for the production and
demonstration of new types of mineral fertilizers. High concentrate
phosphatic
fertilizers and other types developed in these plants have been tested
by the farmers of the region under actual farming conditions. These
programs
have greatly encouraged the development of pastures and livestock in
the
Valley, diversifying the agriculture, adding substantially to the
income
of farm families, and improving their diets.
Not a Planned Region But a
Planning
Region
The planning and accomplishment of
the
development of the other resources of the entire valley required the
participation
of countless individuals and many different governmental agencies. TVA
early recognized that no one agency could prepare a master plan for the
development of the Tennessee Valley that would have general acceptance
or real significance. It was recognized that “the planning of the
Valley’s
future must be the democratic labor of many agencies and individuals,
and
final success is as much a matter of general initiative as of general
consent.” (2)
Accordingly, there has never been attempted a Master Plan blueprint for
the development of the Tennessee Valley. Another reason for not
preparing
a Master Plan for the Valley was the early adoption of a concept set
forth
by John Dewey. The objective of Valley development became not a planned
region but a planning region.
Resource Interrelationships
and Democratic
Participation
TVA further recognized that all of
the
resources of a region are interrelated and that maximum accomplishments
can be obtained only as all of the resources are planned together. When
such planning is done with imagination and enterprise, many
unanticipated
gains are obtained. In some cases the by-products have proved more
valuable
than the initial objective.
Regions have many different
problems and
many different resources and opportunities. Some have neither the need
nor the financial resources to construct a great system of dams and
reservoirs.
This aspect of the TVA program may therefore have little applicability
for them. There are, however, two aspects of the TVA program and the
lessons
growing out of it that have a carry-over value wherever men work
together
to better their standard of living through the wise and effective
utilization
of their resources. These two aspects are: l) the interrelated nature
of
resources and the great gains that may be achieved when plans take
account
of these interrelationships; and 2) the gains that may be realized when
responsibility and initiative are decentralized and when all of the
people
of the region are enlisted as participants in a resource development
program
rather than mere recipients upon whom a program is imposed. I propose
to
devote the remainder of the paper to a few specific illustrations from
the Tennessee Valley of these two aspects of resource development.
Diking and Dewatering
Projects
At first glance, malaria-bearing
mosquitoes,
small grains, and wild ducks and geese may appear to have only a slight
relationship, hut Nature and men sometimes tie objects together in
surprising
combinations.
In the Kentucky reservoir of the
Tennessee
River there were low-lying, fertile river bottom lands which would he
shallowly
flooded by the waters impounded behind Kentucky Dam. Flooding would
remove
these lands from useful agricultural production and provide almost
ideal
breeding places for the malaria-bearing mosquito, thus adding
substantially
to the costs of malaria control.
In lieu of permitting this
flooding, TVA
built dikes around these lands and pumping stations to remove the
rainfall
and surface drainage behind the dikes. At the end of each winter, the
water
is pumped from these areas and the fertile lands are rented to near-by
farmers for the production of small grains. Thus, during the
malaria-mosquito
breeding season the land is dry and no malaria mosquitoes are produced.
Rent consists of a portion of the crop which is left unharvested. After
the farmer has harvested his share of the crop in the fall, the gates
in
the dikes are opened and the area is flooded with the waters of
Kentucky
reservoir. These areas have been previously designated as protected
wildlife
refuges. Ducks and geese, migrating from the North, stop by tens of
thousands
to rest and to feed on the flooded, unharvested grain. The remaining
portions
of the reservoir, in which ducks and geese are not protected, have
become
a duck-hunters’ paradise. Hunters come from far and near, bringing with
them a need for hunting equipment and ammunition, boats, guides, meals
and lodging which the local residents furnish. Thus, in addition to the
profit obtained from the farming of these rich bottom lands the near-by
residents have another source of income from materials and services to
hunters. The cost to TVA of the diking and dewatering project was less
than the cost of a continuing program of a malaria control by
conventional
methods.
The Story of Decatur, Alabama
The changes that have taken place
since
1933 in the city of Decatur, Alabama, is a story both of integrated
resource
development and of widespread participation in program determination
and
development.
In 1933, the citizens of Decatur
were
financially bankrupt, sick, and discouraged. Malaria was rife in the
city,
which had only recently recovered from a disastrous yellow fever
epidemic.
The one source of income of its people, a railroad car shop, had just
terminated
its operations permanently.
As one of the first steps, TVA
eliminated
the malaria hearing mosquitoes that were breeding along the river,
initially
by dusting, supplemented later by rapid weekly fluctuations of the
reservoir,
and by the construction of diking and dewatering projects. Malaria has
now disappeared from Decatur.
After the nine-foot navigation
channel
was completed to Decatur, a Nebraska flour mill built a plant there,
shipped
in its grain by barge, and ground it into flour. The flour mill
provided
local employment. It also furnished an assured market at a fair price
for
all the grain that could be produced locally. Fields were taken out of
corn and tobacco and devoted to the growing of grain.
The availability of grain made
possible
the production of dairy and beef cattle which, in turn, provided a new
source of income and improved diets. The cattle required pasture, so
more
lands were removed from cotton and tobacco and devoted to these
purposes.
The cattle necessitated the construction and operation of a creamery
and
cattle auction pavilion. The availability of grain made possible the
raising
of broiler chickens. For the chicken feed, alfalfa was required so more
land was withdrawn from cotton and tobacco and an alfalfa dehydrating
plant
was built. An existing basketmaking plant that was about to discontinue
operations found a new source of income in making crates in which to
ship
the broilers. The availability of the nine-foot navigation channel led
to the establishment of a ship-building yard on what had formerly been
a cotton field.
With all these encouraging changes
taking
place, the city of Decatur began to take a new interest in its
development.
On the urging of TVA, it established a city planning commission which
prepared
plans for the integrated development of the city with new schools,
parks,
highways, a hospital, industrial and recreational waterfront, and so
on.
Additional money was required to finance these improvements So the
planning
commission, at the request of the City Council, made a careful study of
present sources of revenue and how their yield might be increased, of
how
present income might be expended more efficiently, and then suggested
possible
new sources of revenue.
Substantially all of the
recommendations
of the report have been carried out. At about this time, the Wolverine
Tube Company was seeking a new location for a plant and narrowed its
choice
to Decatur and a Mississippi city. It finally selected Decatur and gave
as the reasons for its decision, among others, the fact that Decatur
was
planning and developing a city with good community services and
facilities.
Decatur was rapidly becoming a city in which their employees would be
happy
to live and this, in turn, would help assure a low labor turnover.
Furthermore,
they stated that although the financial condition of Decatur was not
much
superior to that of the Mississippi city, Decatur had a definite
program
for improving its financial situation and the other city did not. Thus,
good city planning and development resulted in a new industry for
Decatur.
Other industries have come to the City also. Decatur, formerly bankrupt
and discouraged, now boasts that it is the heart of a new inland
empire.
The developments that led these changes did not occur automatically or
accidentally. They came about because of a growing understanding of
resource
relationships and a willingness and desire on the part of many
community
leaders and citizens to accept responsibility and exercise initiative
in
taking advantage of new opportunities.
A New County Library Board
is Created
At its construction village at
Fontana
Dam, a public library was needed to serve TVA’s construction workers.
Instead
of providing this library, itself, as it might easily have done, TVA
encouraged
Swain County to create a County Library Board.
TVA provided quarters for the
library
at its construction village, purchased the required books, paid the
salary
of a librarian, and encouraged the County Library Board to make books
available
to any resident of the County. Many TVA construction workers resided
throughout
the county, so this was a justifiable provision. The result of this
method
of providing the required TVA library services was that all of the
people
of the county gained the advantages of these services and the cost to
TVA
was no greater than would have been the cost of providing the library,
itself. The big pay-off came when the construction of Fontana Dam was
completed.
The library which would otherwise have been abolished at the
termination
of the project, was continued by the County Library Board. Thus the
benefits
go on long after TVA financial and other participation has ended.
Farmers Assume the Lead in
Testing TVA
Fertilizers
At its plant at Muscle Shoals,
Alabama,
TVA developed new types of agricultural fertilizers - notably high
concentrated
phosphatic fertilizers - through the use of an electric kiln. These
fertilizers
were tested by TVA, first in a greenhouse, then in outdoor field plots,
and finally in fields. They appeared to be successful.
The next required test was their
utilization
by farmers under typical farming conditions. The state agricultural
colleges
and their county agents undertook to secure this testing by farmers on
a voluntary basis.
In each agricultural community,
the farmers
were asked to select one of their neighbors who was willing to test the
new fertilizers by continuing, over a period of several years, a farm
program
to he developed jointly by the farmer and the County agent. During the
testing period the farmer agreed further to keep accurate records of
his
farm operations and to permit his neighbors to observe his farm
operations
and to inspect his records. The TVA furnished the required fertilizer
free,
in the initial stages, and at a nominal price in the later stages. The
farmer purchased lime, seeds, and other materials required. He was
known
as a test demonstration farmer. In a few cases, entire farming
communities
served as test demonstrators.
As the farmer’s neighbors watched
his
worn-out fields grow green with grass and other cover crops, erosion
cease,
sheep and cattle multiply and flourish, farm buildings improve as his
income
increased, and electricity take over many of the farm chores, they too,
began to use the new fertilizers and adopt the new farm practices.
Today, as one travels through the
Tennessee
Valley, the results of the program can be observed in fields that are
green
with winter cover crops, in neatly painted farm houses and in many
other
evidences of the improved utilization of soil resources. There is a
long
road yet to be traveled but the farmers of the Valley are on their way
in a program that they, themselves, have developed.
The Valley and the South
Today
There are many other examples in
the Valley
of the gains that have been achieved by recognizing and taking
advantage
of the unified nature of resources. The developments that have taken
place
in the Valley could never have been attained by TVA alone. They were
made
possible by the teamwork of TVA, state and local governments, numerous
citizens’ organizations, and countless citizens. The farms and the
urban
communities of the Valley , through the joint efforts of these groups,
have become better places in which to live and work and play. Per
capita
income has increased from about 40 per cent of the national average to
about 60 per cent and most observers believe that it will continue to
climb.
Similar progress is being made
throughout
the South. The increased purchasing power of the people of the South is
attracting new industries that wish to be near the expanding Southern
market.
Southern industries are manufacturing more and more of the products
Southern
people use. Discriminatory freight rates are being adjusted. Henry
Grady
would be well pleased by the changes that can be observed today.
Textile
mill villages are being sold to their occupants. Wage differentials are
gradually disappearing. Perhaps best of all, Southern boys and girls
non
longer have to go north or east or west in search of economic
opportunity.
They can find it at home.